THIS REPORT CONTAINS ASSESSMENTS OF COMMODITY AND TRADE ISSUES MADE BY

USDA STAFF AND NOT NECESSARILY STATEMENTS OF OFFICIAL U.S. GOVERNMENT

POLICY

Required Report - public distribution

Date: 7/15/2019
GAIN Report Number: ID1915

Indonesia

Biofuels Annual

Indonesia Biofuels Annual Report 2019

Approved By:
Garrett McDonald
Prepared By:
Arif Rahmanulloh

Report Highlights:
Indonesia’s palm-based biodiesel industry enjoyed a large expansion in 2018 with the beginning of
nationwide expansion of B20 to the non-public (Non-PSO) transport sector and a sharp jump in
overseas demand. Domestic consumption is set for another large year-over-year increase in 2019
largely due to further expansion of B20 to the Non-PSO transport sector. Exports are forecast to remain
elevated near 1.8 billion liters based on continued demand from the EU and China. Indonesia’s fuel
ethanol consumption remains virtually zero since 2010 due to lack of financial support and a mandate
that has not been enforced.
Note: Post revises biodiesel production for 2014-2018 based on updated information on industry
reporting requirements.
Post:
Jakarta

Section I. Executive Summary

Indonesia’s biodiesel industry grew rapidly in 2018 with expanding domestic demand fueled by
aggressive domestic mandates (augmented by a growing diesel fuel pool) and sharply higher demand
from overseas markets. By contrast, nothing has changed in the bioethanol market where fuel ethanol
use remains zero (with no significant action on blending targets), feedstock is costly, production
capacity remains limited, and imports are constrained.

In September 2018 Indonesia expanded the nationwide B20 mandate from the Public Service Obligation
(PSO) transport sector, or those areas carried out by state-owned companies to serve public needs, to the
Non-PSO transport sector. The long-planned expansion was ultimately carried out on short notice as the
Government of Indonesia (GOI) faced increasing economic pressures related to the current account
deficit and weakening rupiah. This initiative effectively reduces the demand for imported fossil diesel.
Following some initial logistical challenges, B20 has now been implemented nationwide and plans are
underway to launch B30 in 2020. Support is provided by the CPO fund, which collects a levy on crude
and refined palm oil exports and provides a credit to producers by covering price spreads between
biodiesel and fossil diesel. Although the fund remains well capitalized for now, questions remain
regarding its long-term viability.

Indonesia biodiesel production is expected to increase by 43 percent to 8 billion liters in 2019 on the full
extension of mandate program and ample exports. Although several overseas markets remain attractive,
especially the EU and China, Indonesia has at least temporarily lost the sizable U.S. market following
anti-dumping and countervailing duties imposed in 2017. The EU market reopened once its AD duties
were dropped, but RED II essentially classifies Indonesia’s biodiesel under a high-ILUC risk category
and will therefore be capped and then phased-out by 2030. It remains to be seen if this phase out may be
offset to some degree by certain areas being certified as low-ILUC risk.

Indonesia’s molasses based bioethanol industry continues to face challenges. Currently, there is no fuel-
grade ethanol produced or consumed in Indonesia, although there are ethanol plants producing non-fuel
ethanol for the medical industry, cosmetics, other industrial uses and export. Despite ethanol-blending
mandates of E5 and E10 by 2020 and E20 by 2025, there is no implementation due to lack of financial
support as well as feedstock constraints.

Imported ethanol both pre-blended in finished gasoline and directly imported for domestic blending has
potential to improve the country’s adverse terms of trade (by lowering the cost of imported finished
gasoline) and lower prices consumers pay at the pump. A 30-percent import duty on ethanol protects
local ethanol distillers and the domestic sugar industry, which provides the molasses feedstock for
ethanol production. Import opportunities are further limited by a general lack of competition in the fuels
market with, Pertamina’s dominance in the energy sector, and GOI’s sole focus (currently) to subsidize
the domestic biodiesel industry that relies on the world’s largest palm industry for feedstock to the
detriment of supporting renewable fuel (biobased ethanol) use in gasoline. As with many commodities,
GOI agricultural policy of “self-sufficiency” remains an over-arching rationale to keep trade barriers in
place.
Section II. Policy and Program
Indonesia’s biofuels program is a key component of the National Energy Policy (KEN), as formalized in
Government regulation 79/2014. KEN targets 23 percent renewable energy use nationally by 2025 and
31 percent in 2050. Biofuel’s contribution to meeting these goals roughly translates to 13.9 billion liters
and 52.3 billion liters of biofuel use, respectively. It is unclear if these biofuel use estimates are based on
biodiesel only or a combination of biodiesel and ethanol use, and, if the latter, what he combination is.

Indonesia began adopting biofuels policy at national level in 2006 by issuing Regulation 1 governing the
procurement and usage of biofuels. In support of Regulation 1, Presidential decree 20/2006 established a
National Biofuels Development Team, responsible for supervising the implementation of biofuel
programs and creating a blueprint for biofuels development. According to the blueprint, biofuels
development aims to (1) alleviate poverty and unemployment, (2) drive economic activities through
biofuel procurement and (3) reduce domestic fossil fuel consumption. This regulation was followed by
Indonesia’s House of Representative (DPR), which passed Energy Law (UU 30/2007) to strengthen
regulations prioritizing the use of renewable energy. Read earlier report here.

Biofuel policy has taken on national importance as a means to reduce imports to improve the balance of
payments, become energy self-sufficient, and support the palm oil sector, which is expected to continue
to see production increases for the foreseeable future. The B20 expansion has given confidence to GOI
officials in moving forward with higher blend rates.

Renewable Energy and GHG Emissions

Indonesia is committed to reduce greenhouse gas emissions (GHG) that include the energy and
transportation sectors. Through the Intended Nationally Determined Contribution (INDC) submitted to
the UNFCC in 2016 documents, Indonesia commits to reduce total national GHG emissions by 29
percent by 2030 through domestic ventures or 41 percent with international assistance.

Within the energy sector, the BAU (business as usual) emission scenario below shows emissions
without consideration of climate change mitigation policy. The CM1 (Counter Measure 1) emission
scenario with mitigation, considers sector targets without international support. The CM 2 emission
scenario considers sector targets with international support. Emission reductions for the energy sector
assume biodiesel use, specifically B30, within transportation sector is 90 percent under CM1 and 100
percent under CM2.

Ministry of Energy and Mineral Resource (MEMR) recently added liquid biofuels as part of the
renewable energy source for electricity generation by issuing MEMR regulation 53/2018. The previous
regulation only referred to sunlight, wind, hydro, biomass, biogas, city waste, geothermal, ocean current
and thermal. The regulation allows PLN (Indonesia’s state-owned electricity company) to purchase
electricity from biofuel power plants directly. The regulation provides a legal standing for PLN to
procure electricity from a new CPO power plant that began operating in early 2019 as well as from
expected future conversions of diesel to CPO-power plants in remote areas.

Table 1. Indonesia GHG Emission Reduction within Energy Sector

GHG Emission Level 2010 GHG Emission Level 2030

GHG Emission Reduction
(MTonne CO2e) (MTone CO2e)
 MTone CO2e Percent of BAU
BAU CM1 CM2
CM1 CM2 CM1 CM2
453.2 1,669 1,355 1,271 314 398 11 14
Source: Ministry of Environment and Forestry (MEF)

Mandates and Pricing Formula for Biofuels

A biofuel blending mandate was created in 2008 through MEMR Regulation 32. The blending mandate
was most recently revised through MEMR Regulation 12, released in March 2015.

MEMR regulation 12/2015 established biofuel-blending targets for transportation, industry and power
generation sectors. Read earlier report here.

Tables 2 and 3 show Government of Indonesia (GOI) plans to increase biodiesel and bioethanol
blending through 2025.

Table 2. Indonesia Biodiesel Mandatory Target

Sector 2016 2020 2025

Transportation, Public Service Obligation (PSO) 20% 30% 30%
Transportation, Non-PSO 20% 30% 30%
Industry 20% 30% 30%
Electricity 30% 30% 30%
Source: MEMR Regulation 12/2015

Table 3. Indonesia Bioethanol Mandatory Target

Sector 2016 2020 2025

Transportation, Public Service Obligation (PSO) 2% 5% 20%
Transportation, Non-PSO 5% 10% 20%
Industry 5% 10% 20%
Source: MEMR Regulation 12/2015
 Figure 1. Indonesia Biodiesel Market Index Price 2016-2019 (IDR per liter)

Source: MEMR

In 2016, through MEMR Regulation 6034, GOI revised the market index price formula to strengthen the
incentive for bioethanol production. The new formula switched from an Argus price-based formula to
domestic molasses price formula published by state-owned agricultural trade company Kharisma
Pemasaran Bersama (KPB).

MEMR further revised the formula for the biodiesel market index price in May 2017. The new formula
lowers the biodiesel conversion factor from 125 USD/MT to 100 USD/MT, implying a decrease in the
amount paid per unit through biodiesel fund to the producers. As stated in the MEMR regulation 2026,
the revision aims to increase both “production efficiency” as well as biofuel consumption. The
regulation seeks to prevent over-compensation to producers and to reduce fund expenditures. To ensure
producers and retailers meet their allocated quota and distribution obligations, GOI has enforced a fine
of IDR 6000 per liter for companies unable to meet the contracted obligations.

Financial Supports
In 2015, a financial support mechanism was created to support domestic biodiesel consumption.
Managed by the Oil Palm Plantation Fund Management Agency (BPDPKS), funds are collected from a
palm oil export levy to offset price gap between biodiesel and fossil diesel. The agency also uses the
fund for research and development, replanting and palm promotion activities.
From 2015-2018 the fund collected $3.3 billion (IDR 47.28 trillion). Through November 2018 the fund
had disbursed $1.9 billion (IDR 24.71 trillion) for biodiesel incentives. In December 2018, due to low
palm oil prices and pressure from palm oil producers GOI changed the levy structure from a fixed rate to
a price-based structure. Since the levy structure change went into effect, BPDPKS has not collected any
levy funds.

Figure 2. Funds Collected from Palm Oil Export Levy and Distributed for Biodiesel Program ($)
 Source: media compilation

Table 4. Old and New Exports Levy ($/ton)

Old Levy, New Levy Structure,

HS Code Description
flat price-based
1511.1000 Crude palm oil (CPO) 50 0 - 50
3826.0090 Biodiesel contains Palm methyl ester (PME) 20 0 - 20
more than 96.5 percent

Also in December, GOI announced biodiesel allocations would no longer be made on a six-month cycle,
but instead made for the entire calendar year. The announcements disclosed the biodiesel volume
eligible producers are required to deliver to retailers.
Eligible producers are awarded volume based on their capacity. MEMR is responsible for verifying the
delivery of biodiesel from producer to retailer, both private operators and State-owned energy giant
Pertamina. BPDPKS uses the verification result to disburse funds to the producers (see Figure 3).
 Figure 3 Indonesia Biodiesel Support Fund Mechanism

Source: BPDPKS

Traditionally, many producers had purposefully inflated their capacity to secure larger government
allocations as many plants ran well below capacity and government procurement was the only game in
town. Ironically, during the latest cycle of allocations, producers were able to earn significantly more by
producing for export than by fulfilling GOI allocations, causing some to re-state their overall capacity
and others to purchase biodiesel production from competitors to meet their government allocation
obligations.

Import Policy, Export Taxes and Export Levy

Biofuels importation requires recommendation from MEMR according to Ministry of Trade (MOT)
Regulation 21/2019. This regulation replaces MOT 3/2015 by introducing online submission, reducing
requirements for both exports and imports approval and removing verification for biodiesel exports.

Ministry of Finance (MOF) Regulation 6/2017 states the latest import duties for both undenatured
ethanol (HS code 2207.10) and denatured ethanol (HS code 2207.20).

Table 5. Import Duties on Biofuels

HS Description Duty Rate

Code (percent)
2207.10 Undenatured ethanol 30
2207.20 Denatured ethanol 30
3826.001 Biodiesel, with Coconut methyl ester (CME) content more than 70 5
percent
3826.002 Biodiesel, with ester alkyl content more than 96.5 percent 5
2710.20 Petroleum oils containing up to 30 percent biodiesel 0
Source: MOF
Indonesia is bound by several trade agreements, providing a lower duty on ethanol imports from
ASEAN member states, Japan and South Korea.

Table 6. Trade Agreements Providing Lower Ethanol Imports Duties to Indonesia

Trade Agreement Tariff Regulation Ethanol Import Duty (HS Code 2207)
ATIGA ASEAN MOF Regulation 25/2017 0 percent
AKFTA ASEAN-Korea MOF Regulation 24/2017 5 pct (2017 onward)
IJEPA Indonesia – Japan MOF Regulation 30/2017 11.25 pct (2017)
9.38 pct (2018)
7.5 pct (2019)
5.63 pct (2020)
3.75 pct (2021)
1.88 pct (2022)
0 pct (2023 onward)
AJCEP ASEAN - Japan MOF Regulation 18/2018 13.82pct (2018)
12.35pct (2019)
10.88pct (2020)
9.41pct (2021)
7.94 pct (2022)
6.47 pct (2023)
5 pct (2024)
5 pct (2025 onward)
Source: MOF

In addition to import duties, Indonesia also imposes export taxes and an export levy on biodiesel and its
main feedstock, Crude Palm Oil (CPO). Under MOF regulation 136/2015, the export tax is based on
CPO reference price. There is zero export tax on CPO for prices below $750 per ton and for biodiesel
prices below $1000 per ton. Once reference prices exceed these levels, the tax is imposed on a sliding
scale.
 Table 7. Price Structure of Exports Tax on CPO, biodiesel ($/ton)

Export Tax ($/ton)

Price Threshold ($/ton)
CPO Biodiesel
1 up to 750 0 0
2 more than 750 up to 800 3 0
3 more than 800 up to 850 18 0
4 more than 850 up to 900 33 0
5 more than 900 up to 950 52 0
6 more than 950 up to 1000 74 0
7 more than 1000 up to 1050 93 1
8 more than 1050 up to 1100 116 3
9 more than 1100 up to 1150 144 3
10 more than 1150 up to 1200 166 36
11 more than 1200 up to 1250 183 36
12 more than 1250 200 64
Source: MOF Regulation 136/2015, MOF Regulation 75/2012

In December 2018, GOI changed the levy structure from a fixed rate to a price-based structure. Under
the new structure, the levy will be exempted if the CPO price goes below $ 570 per ton and fully applied
for prices above $619. If the price moves between these thresholds, then the levy is partially applied.
Indonesia export reference prices went below $570 during December 2018 to February 2019.

Table 8. Price Structure of Exports Levy on palm oil, biodiesel ($/ton)

Below $570/ton Between $570/ton and $619/ton Above $619/ton

CPO 0 25 50

Biodiesel 0 10 20

Source: MOF Regulation 23/2019

Since the levy is no longer being collected, in February 2019, GOI removed requirements for
verification survey documents on all CPO exports. Despite aiming to accelerate export procedures, this
action may result in misreporting of export data as the surveys had been the primary means for
determining export volumes.

Environment Sustainability and Certification

Indonesia has no specific regulation on biofuel sustainability criteria for domestically consumed
biodiesel. However, there are several sustainability certification schemes available for palm oil
production, such as RSPO and ISPO. Programs cover a range of common sustainability criteria
including greenhouse gas (GHG) emissions, land use, biodiversity and labor. They apply only to palm
oil and palm oil biodiesel exported to countries that have sustainability requirements for these products.
The EU focus on biofuel sustainability criteria, translated into policy outlined in the Renewable Energy
Directive (RED) and RED II, weighs heavily on the Indonesian biofuels sector, and is a constant source
of strife among high-level GOI officials and their EU counterparts.

RED II officially entered into force in December 2018 and EU member states must transpose its
provisions into national law by June 2021. In March 2019, the EU Commission adopted the delegated
act which set criteria both for (1) determining the high ILUC (indirect land-use change) risk feedstock
for which there is a significant expansion of the production area into land containing high carbon stocks
and (2) certifying low ILUC-risk biofuels.

The report, published along with the delegated act, concludes that palm oil qualifies as high ILUC-risk
feedstock that must be capped then gradually decreased after 2023 to zero by 2030. However, the report
also notes that some palm biodiesel production, under certain conditions, may be considered in the low-
ILUC risk category.
The GOI continues to oppose EU attempts to regulate biofuels and has engaged other palm producing
countries to counter the measures. GOI officials frequently mention the possibility of retaliation against
EU products like aircraft, dairy and beverage products. Recently, Indonesian alcoholic-beverage
importers were given zero annual quota issued for EU-origin spirits, what many believe was a slap at EU
palm oil and biofuel policy.

Section III. Gasoline and Diesel Pools

Beginning in 2012, conversion to coal-fired power plants by PLN has lowered diesel consumption for
stationary power. These conversions have generally offset the upward trends in gasoline and jet fuel
pools. Indonesia total fuel sales began to rebound in 2017, as PLN diesel-to-coal conversions stopped
for now and following increases in diesel and gasoline used in transportation.

Figure 4. Gasoline and Diesel Consumption 2011-2017 (billion liter)

Source: MEMR, PLN Statistic

Indonesian gasoline subsidies were removed in 2015 with the collapse in oil prices. As a result, the price
gap between various qualities of light duty fuels fell and fuel consumption shifted slightly to higher-
octane fuels. As crude oil price increased during 2016-2017, Pertamina began to adjust the price of
higher-octane fuels such as Pertalite (Ron 90) and Pertamax (Ron 92). However, no price adjustments
have been made for PSO fuels such Premium and diesel.

Table 7. Gasoline retail price (IDR per liter) and sale share

Sale Share (Percent) Price (IDR per liter)

Type of Gasoline Brand
2016 2017 Jan-17 Jul-18 May-19

RON 98 Pertamax Turbo 1.1 1.1 9,100 10,700 11,200

RON 92 Pertamax 14.9 18.4 8,050 9,500 9,850
RON 90 Pertalite 18.1 43.2 7,350 7,800 7,650
RON 88 Premium 65.8 37.2 6,550 6,550 6,550
Note: 2016 updated. Price for Java and Bali area. Source: MEMR, BPH Migas

Gas retailers offer different fuel prices in each region or province. In general, Java and Bali receive the
lowest pricing, while eastern Indonesia sees the highest due to logistical costs. Fuel prices in remote
areas such in Papua may reach two or three times the prices on Java. The GOI program on single fuel
price (BBM Satu Harga) aims to provide fair price for fuel in remote areas, mainly for PSO fuel. There
were 128 points of sale established under this program at the end of 2018 with an expected increase to
about 170 points in 2019.

Table 8. Diesel retail price (IDR per liter) and sale share

Sale Share (Percent) Price (IDR per liter)

Type of Diesel Brand
2016 2017 Jan-17 Jul-18 May-19

Diesel CN 48 Solar 92 91 5,150 5,150 5,150

Diesel CN 51 Dexlite 0.4 1.2 7,200 9,000 10,200
Diesel CN 53 Pertamina Dex 0.5 0.6 8,500 10,500 11,700
Note: Price for Java and Bali area. Solar price refer to PSO sector. Source: MEMR, BPH Migas

GOI has increased the fuel subsidy for diesel from IDR 500 per liter to IDR 2000 per liter in response to
crude oil price increases and interest in maintaining low retail diesel prices ahead of the 2019 election.
GOI has not re-established a subsidy for gasoline; however, a price review is conducted quarterly to
determine if adjustments may be necessary to Premium grade prices based on international prices.
Table 9. Indonesia, Fuel Use History
Fuel Use History (Million Liters)
Calendar Year 2010 2011 2012 2013 2014 2015 2016r 2017 2018e 2019e
Gasoline Total 23,863 26,447 29,276 30,511 30,925 31,528 31,986 33,548 34,353 35,246
Diesel Total 36,450 37,497 37,743 36,124 34,651 30,912 30,039 31,441 32,196 33,033
All Surface transports 27,125 26,030 29,528 28,649 27,220 25,433 25,372 27,843 28,785 29,621
Industry 9,325 11,467 8,215 7,474 7,431 5,479 4,667 3,598 3,411 3,412
Jet Fuel Total 3,530 3,270 3,901 4,162 4,231 4,340 4,668 4,715 5,503 5,646
Total Fuel Markets 63,842 67,214 70,920 70,797 69,807 66,779 66,694 69,704 72,052 73,925
Source: MEMR, r= revised, e = Post estimation

Section IV. Ethanol

Consumption
Indonesia’s Fuel Grade Ethanol (FGE) consumption has remained virtually zero since 2010 due to lack
of financial support to run the blending program and a mandate that was never enforced. From 2006-
2009, Pertamina was able to sell E2 gasoline on a limited basis due to state subsidies covering the price
difference bioethanol and gasoline. However, due to increasing costs of production for FGE and limited
state-budget for subsidies, Pertamina received limited supplies from ethanol producers.

In February 2018, MEMR announced a plan to implement bioethanol blending of E2 in several big
cities, most likely in East Java due to proximity with ethanol producer plants. Unlike the broad-based E2
program in the past, which was inadequately supported by the state-budget fund, this pilot program may
target only high-octane gasoline where the price difference with ethanol is narrower. However, a MEMR
official indicates that this E2 pilot program was “ineffective” due to the higher price of E2 compared
with conventional gasoline.

Non-FGE demand originates from various industries including perfumes, cosmetics, pharmaceutical and
chemical solvents. Post expects consumption of industrial grade ethanol (IGE) will slightly increases to
139 million liters in 2019.

Production
FGE production became unfeasible following the end of GOI’s limited blending support. As a result,
ethanol distillers switched their entire production to meet industrial grade demands. Post expects
Indonesia industrial ethanol production to reach 195 million liters in 2019.
In July 2018, Indonesia largest ethanol producer commenced development of a new production facility
in Lampung, Sumatra. The plant will utilize various raw materials including molasses and corn. It’s
expected to be commissioned in 2020 and will have a 50-million liter capacity.
Indonesia’s 2019 ethanol refinery capacity, both active and idle, remains unchanged at 408 million
liters. Only 3 out of 14 plants are able to produce FGE, with capacity up to 100 million liters.
Molasses is the feedstock for Indonesia ethanol production. More than 60 sugarcane mills are currently
active and producing molasses. Indonesia sugarcane industry is expected to produce 2.1 million tons
sugar in 2019/20 from 29.1 million tons of sugarcane (Sugar: World Market and Trade), resulting 1.4
million tons of molasses available. To produce 200 million liters of ethanol, industry requires roughly
815,000 tons of molasses. However, Indonesia’s ethanol industry is not the only consumer of molasses.
Lucrative overseas markets and demands from the monosodium glutamate industry compete with the
ethanol industry.
Indonesia’s import restrictions on cheaper, more widely available ethanol feedstock such as corn
continue to hinder the growth and viability of local ethanol producers.
MEMR formulates Bioethanol Market Index price (Figure 5) based on domestic molasses prices. The
bioethanol price reached 10,201 IDR per liter in June 2019 and has remained higher than Pertamina
gasoline RON 92 since February 2019, after almost achieving parity during October 2018 to January
2019.
 Figure 5. Bioethanol and high-octane gasoline price (IDR per liter)

Source: MEMR, BPH Migas

Trade
In recent years, annual ethanol exports have ranged from 60 to 90 million liters with most shipped to the
Philippines or Japan for use as non-fuel industrial chemicals. However, a larger volume (158 million
liters) of exports was shipped in 2018 with Singapore as the reported destination. This corresponds to
about 95 million liters of ethanol Indonesia imported from the United States and Malaysia (October-
November 2018). News reports based on interviews with traders identify this as sales of US-origin fuel
ethanol indirectly shipped to China. Direct US-China sales were shut off early in 2018 when China
raised duties on U.S. product to 45% and eventually 70%. Jan-March 2019 ethanol exports reached 12.7
million liters, 27 percent lower than the similar period in 2018. Post expects ethanol exports to reach 64
million liters in 2019. Shipments of ethanol used as other industrial chemicals continue to Japan and the
Philippines with no recorded sales to Singapore.

A 30 percent import duty on ethanol protects local ethanol distillers and the domestic sugar industry,
which provides the molasses feedstock. Import opportunities are further limited by a general lack of
competition in the fuels market with Pertamina’s dominance in the energy sector, and GOI’s inaction to
promote ethanol use in gasoline.

Production, Supply and Demand Statistics

 Ethanol Used as Fuel and Other Industrial Chemicals (Million Liters)
Calendar Year 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019f
Beginning Stocks 42 36 41 52 39 14 16 15 14 14
Fuel Begin Stocks 0 0 0 0 0 0 0 0 0 0
Production 175 220 205 207 202 205 205 195 200 195
Fuel Production 3 3 2 2 18 1 0 0 0 0
Imports 0 1 0 0 2 0 2 5 96 5
Fuel Imports 0 0 0 0 0 0 0 0 95 0
Exports 49 81 59 86 94 67 71 64 158 64
Fuel Exports 3 3 2 2 18 1 0 0 95 0
Consumption 132 134 135 135 135 136 137 137 138 139
Fuel Consumption 0 0 0 0 0 0 0 0 0 0
Ending Stocks 36 41 52 39 14 16 15 14 14 11
Fuel Ending Stocks 0 0 0 0 0 0 0 0 0 0
Total BalanceCheck 0 0 0 0 0 0 0 0 0 0
Fuel BalanceCheck 0 0 0 0 0 0 0 0 0 0
Refineries Producing Fuel Ethanol (Million liters)
Number of Refineries 3 3 3 3 3 3 3 3 3 3
Nameplate Capacity 100 100 100 100 100 100 100 100 100 100
Capacity Use (%) 3% 3% 2% 2% 18% 1% 0% 0% 0% 0%
Feedstock Use for Fuel (1,000 MT)
Molasses 13 11 6 7 72 4 0 0 0 0
Market Penetration (Million Liters)
Fuel Ethanol 0 0 0 0 0 0 0 0 0 0
Gasoline 23,863 26,447 29,276 30,511 30,925 31,528 31,986 33,548 34,353 35,246

Blend Rate (%) 0% 0% 0% 0% 0% 0% 0% 0% 0% 0%

Section V. Biodiesel

Consumption
Indonesian biodiesel consumption is driven by the blending mandate program, and supported by funds
from CPO exports levy. Consumption is primarily used for the on-road transportation sector, with a
small fraction used for electricity generation.
Following lower blend mandates set in earlier years and never fully implemented, Indonesia launched
the B20 mandate in the PSO transportation sector in 2016. In September 2018, facing a weakening
rupiah and widening current account deficit the GOI extended the B20 mandate into Non-PSO
transportation with little warning for industry. As a result of the expansion an additional allocation of
940 million liters was created for 2018 Q4 delivery. GOI appointed 19 producers to deliver biodiesel to
more than 120 distribution points across the country. From the outset the deliveries faced logistical
challenges, especially in eastern provinces. Several vessels were unable to arrive on schedule due to
weather issues and high number of distribution points. Under the new regulation (MEMR Regulation
41/2018), producers can be fined IDR 6000 per liter if they are unable to deliver FAME on schedule.
The same amount of penalty can be charged to fuel retailers if they sell unblended regular diesel. In late
2018, eleven companies consisting of nine biodiesel producers and two fuel retailers were fined a total
IDR 360 billion ($25 million USD) for failing to meet distribution and blending requirements.

Biodiesel consumption in electricity sector remains limited despite state-run electric utility PLN already
using B30 in some generators. The limited use of biodiesel for electric production is the result of most
diesel power plants being used primarily to meet demand only during peak hours and the cost advantage
of coal-fired power plants. The conversion of power plants to coal use over the past several years has
also limited the opportunity for biodiesel.

In late 2018, a CPO-only powered plant was commissioned in Belitung after completing several months
of trial. MEMR then issued new regulation (MEMR Regulation 53/2018) allowing such a power plant to
be categorized as a renewable energy source and allowing PLN to buy its electricity. Industry sources
indicate about 50 – 60 percent of generators could be converted affordably to run on CPO, provided the
generator was used for the whole day. However, since many are “peaker” plants, they would not meet
the definition of renewable under the new regulation.

As result of B20 expansion to the non- PSO sector, biodiesel consumption increased by 54 percent to
3.95 billion liters in 2018. GOI set the 2019 biodiesel allocation to 6.19 billion liters for both PSO and
Non-PSO.

Table 10. Biodiesel Allocation 2015-2019

Total Allocation
Allocation Period No Supplier Sector
(billion liters)
November 2015 - April 2016 12 1.87 PSO
May - October 2016 16 1.53 PSO
November 2016 - April 2017 17 1.53 PSO
May - October 2017 20 1.37 PSO
November 2017 - April 2018 21 1.41 PSO
May - October 2018 19 1.46 PSO
September- December 2018 19 0.94 Non-PSO
January- December 2019 19 6.19 PSO, Non-PSO
Source: MEMR

Post expects 2019 consumption to reach 6.2 billion liters based on no change in the recent growth rate
for transport diesel and fully successful implementation of the CPO fund. Some additional factors that
may affect 2019 consumption include:

 GOI has begun conducting B30 road tests in June 2019. If early test results are positive, B30
implementation for Non-PSO transport could be accelerated ahead of the currently 2020
implementation as outlined in MEMR Regulation 12/2015. Industry contacts have suggested the
government has yet to convince major automotive manufacturers.
  Increased sales to the lucrative export market may lower local consumption as producers seek to
generate more profits on the spread between higher crude oil prices and depressed CPO prices.

The CPO Fund balance is able to support the biodiesel mandate program throughout 2019. Because of
the narrower price spread in 2018, there are more remaining funds available than 2017. However, GOI
policy to change the export levy into a price-based scheme in December 2018 and temporary suspend
the levy from March to May 2019 runs the risk of depleting the fund should the spread increase. No
funds have been collected since December 2018 to February 2019 (due to low price) and March to May
2019 due to temporary suspension.

One interesting result of the B20 expansion is an increase in state-run energy company Pertamina’s
diesel stocks. Local diesel production is now meeting national demand and existing contracts have led
to a surplus diesel imports. An industry source noted that GOI is no longer issuing import permits for
diesel to private fuel-retailers, instead pushing them to purchase Pertamina diesel stocks.

Production
Post revises production data from 2014-2017 lower and 2018 higher. Previous production figures
utilized MEMR data that relied on a self-reporting among producers. Post has confirmed that not all
producers follow the self-reporting guidelines and in their absence MEMR uses capacity estimates to
determine production. Since many producers in previous years have overestimated their capacity to
receive larger GOI allocations, this has led to an exaggeration in total national production.

Post expects Indonesia biodiesel production to increase 43 percent to 8 billion liters in 2019 on the full
expansion of B20 mandate into the non-PSO sector and continued high demand from overseas markets.
Updated 2018 biodiesel production figure suggests 5.6 billion liters.

Indonesian biodiesel production registered capacity has grown from 4.9 billion liters in 2012 to 11.5
billion liters in 2017 and essentially stabilized for now with little change in 2018 and 2019. Current
capacity exceeds full implementation of B20 mandate program and estimated export demand. The
capacity is expected to increase to 12.5-13 billion liters in 2021 as several producers are planning to
expand their facilities.

Despite significant production growth, some producers with stand-alone plants (without any pre-
treatment facility) experienced issues procuring refined palm oil, especially during the early
implementation of the blending mandate.

Trade
Indonesia biodiesel exports reached 1.772 billion liters in 2018, jumping from 187 million liters the
previous year. About half of all shipments were to EU country destinations, followed by China with 750
million liters in total. Other exports destinations include Peru, India and South Korea.

Post expects Indonesia biodiesel exports to remain strong at 1.8 billion liters in 2019 based on continued
EU and China demand. From January – March 2019, shipments reached 203 million liters, a doubling
from the same period in 2018. The increase has been encouraged by the new export levy structure
beginning in December 2018 and temporary suspension up to May 2019. Malaysia’s suspension of
palm oil export duties through December 2019 is decreasing the spread with Indonesia palm oil prices
and may push Indonesia to continue suspending the export levy through the end of the year.
In 2018, trade data indicates Indonesia imported 28 million liters of biodiesel from Malaysia, a small
fraction of national production and use. The import occurred in first month of the extension of mandate
program to non-PSO sector and was likely used to make up for initial production shortages.

Indonesia, along with Argentina, are the largest exporters of biodiesel. The EU, United States and on
occasionally China have been their largest overseas markets.

During 2015-2017, exports were sharply lower than previous years mainly because the EU limited
imports by imposing high duties that were overturned in 2018.

Indonesian exports of biodiesel to the U.S. ended in November 2016. Subsequently, the U.S.
Department of Commerce and U.S. International Trade Commission imposed high preliminary duties.
Biodiesel exports from Indonesia are now subject to AD duties of up to 277 percent and CVD duties of
up to 65 percent. With duties this high, the arbitrage window for Indonesian biodiesel exports to the
United States will remain closed as long as the duties remain in place.

In February 2018, GOI responded to the United States’ AD/CVD determinations by bringing the case to
the World Trade Organization (WTO). The Ministry of Trade (MOT) contends the methodologies for
calculating dumping and assigning dumping margins are inconsistent with WTO rules. Other
government officials have cited the AD/CVD case in reference to draft regulations that would restrict
the import of U.S. soybeans, the number one U.S. agricultural export to Indonesia.

In response to EU RED II policy to cap and then phase out high-risk ILUC biofuels which principally
targets biofuels made from palm oil, a MOT official in March 2019 noted that Indonesia is assembling a
team that will bring the case to the WTO.

Figure 6. Indonesia biodiesel monthly shipments 2014-2019 (million liter)

Source: GTA
Production, Supply and Demand Statistics
Biodiesel (Million Liters)
Calendar Year 2010 2011 2012 2013 2014r 2015r 2016r 2017r 2018r 2019e
Beginning Stocks 22 16 29 27 11 97 94 110 152 58
Production 780 1,812 2,270 2,950 3,500 1,200 3,500 2,800 5,600 8,000
Imports 0 0 5 24 0 0 0 0 28 0
Exports 563 1,440 1,608 1,942 1,569 343 476 187 1,772 1,800
Consumption 223 359 669 1,048 1,845 860 3,008 2,572 3,950 6,200
Ending Stocks 16 29 27 11 97 94 110 152 58 58
BalanceCheck 0 0 0 0 0 0 0 0 0 0
Production Capacity (Million Liters)
Number of Biorefineries 22 22 22 26 26 27 30 32 31 31
Nameplate Capacity 3,921 3,921 4,881 5,670 5,670 6,887 10,898 11,547 11,357 11,357
Capacity Use (%) 19.9% 46.2% 46.5% 52.0% 61.7% 17.4% 32.1% 24.2% 49.3% 70.4%
Feedstock Use for Fuel (1,000 MT)
Crude Palm Oil (CPO) 718 1,667 2,088 2,714 3,220 1,104 3,220 2,576 5,152 7,360
Market Penetration (Million Liters)
Biodiesel, on-road use 178 287 535 838 1,476 665 2,621 2,272 3,650 5,900
Diesel, on-road use 27,125 26,030 29,528 28,649 27,220 25,433 25,372 27,843 28,785 29,621
Blend Rate (%) 0.7% 1.1% 1.8% 2.9% 5.4% 2.6% 10.3% 8.2% 12.7% 19.9%
Diesel, total use 36,450 37,497 37,743 36,124 34,651 30,912 30,039 31,441 32,196 33,033
Source and note: MEMR, GTA (trade data), Post estimation; r= revised (in red color), e=estimate,

Section VI. Advanced Biofuels

A trial for “green fuels” co-processing was completed by MEMR, Bandung Institute Technology (ITB)
and facilitated by Pertamina in December 2018. The co-processing aims to utilize palm oil to produce
renewable (drop-in) gasoline, diesel and jet fuel, which have similar properties with fossil gasoline,
diesel and jet fuel. Pertamina continues to run the pilot project and has begun updating three refineries.
A plant to produce the catalyst for fuel co-processing is being planned and is expected to be
commissioned in 2020.
In January 2019, Pertamina and Italian company ENI signed an agreement to develop a renewable fuels
refinery for producing hydro’treated vegetable oil (HVO) in Indonesia. This agreement allows ENI
facilities to process Indonesia CPO to produce HVO in the short term while ENI assists Pertamina to
develop a greenfield renewable fuel refinery in Indonesia.

Section VII. Notes on Statistical Data

Fuel Use History
Gasoline, diesel and jet fuel use history figures in Table 9 are based on MEMR Handbook of Energy &
Economic Statistics of Indonesia 2018, specifically for 2010-2017. Year 2018 and 2019 are Post
estimates.

Bioethanol
Bioethanol market index prices in Figure 5 based on MEMR publications. MEMR calculate Bioethanol
market index price using molasses reference price. “Premium” refers to an Indonesian gasoline blend
with RON 88 quality.
 Molasses Price Bioethanol Market Index Price Gasoline 88 (Premium) Price
Month (IDR/kg) (IDR/liter) (IDR/liter)

2017 2018 2019 2017 2018 2019 2017 2018 2019

Jan 1,864 1,625 1,611 11,049 10,090 10,274 6,550 6,550 6,550
Feb 1,864 1,625 1,611 11,036 10,059 10,235 6,550 6,550 6,550
Mar 1,864 1,625 1,611 11,026 10,083 10,167 6,550 6,550 6,550
Apr 1,864 1,625 1,611 11,028 10,140 10,178 6,550 6,550 6,550
May 1,864 1,625 1,611 11,028 10,147 10,195 6,550 6,550 6,550
Jun 1,864 1,625 1,611 11,020 10,210 10,201 6,550 6,550 6,550
Jul 1,830 1,533 10,874 9,900 6,550 6,550
Aug 1,830 1,556 10,885 10,010 6,550 6,550
Sep 1,731 1,626 10,475 10,337 6,550 6,550
Oct 1,660 1,619 10,168 10,377 6,550 6,550
Nov 1,625 1,619 10,074 10,457 6,550 6,550
Dec 1,625 1,611 10,088 10,362 6,550 6,550
Source: MEMR

Biodiesel
Consumption figures are based on MEMR statistics. Trade figures are based on Global Trade Atlas
(GTA) data, under HS code 3826.00 and 2710.20. This report assumes that all product moving under
these codes are B100 and B5, respectively.
Biodiesel market index prices in Figure 1 collected from MEMR publications. The following table
compiles CPO reference prices used to calculate the biodiesel market index price published monthly by
MEMR. Diesel price, called “Solar” price refers to PSO diesel fuel.

CPO Reference Price Biodiesel market index price Diesel price (Solar), PSO
Month (IDR/kg) (IDR /liter) (IDR/liter)

2017 2018 2019 2017 2018 2019 2017 2018 2019

Jan 9,082 7,841 5,872 9,362 8,000 6,371 5,150 5,150 5,150
Feb 9,238 7,810 6,628 9,493 7,962 7,015 5,150 5,150 5,150
March 9,089 8,029 7,101 9,358 8,161 7,403 5,150 5,150 5,150
April 8,463 8,230 7,078 8,815 8,356 7,387 5,150 5,150 5,150
May 8,129 8,118 7,026 8,520 8,261 7,348 5,150 5,150 5,150
Jun 8,210 7,954 6,598 8,230 8,140 6,977 5,150 5,150 5,150
July 8,016 7,740 8,131 7,949 5,150 5,150
Aug 7,712 7,300 7,871 7,600 5,150 5,150
Sept 7,822 6,932 7,965 7,294 5,150 5,150
Oct 8,462 6,957 8,518 7,341 5,150 5,150
Nov 8,411 6,794 8,490 7,227 5,150 5,150
Dec 8,406 6,086 8,491 6,589 5,150 5,150
Source: MEMR
The following table shows CPO reference price used by MOT to determine both CPO export duty and
Palm Methyl Ester (PME) / biodiesel export duty.
CPO Reference Price (USD/MT) CPO Exports Duty (USD/MT) PME Export Duty (USD/MT)
Month
2017 2018 2019 2017 2018 2019 2017 2018 2019
Jan 788 697 503 3 0 0 0 0 0
Feb 816 694 565 18 0 0 0 0 0
March 826 709 596 18 0 0 0 0 0
April 763 712 568 3 0 0 0 0 0
May 732 703 573 0 0 0 0 0 0
Jun 723 687 547 0 0 0 0 0 0
July 726 678 0 0 0 0
Aug 698 632 0 0 0 0
Sept 697 604 0 0 0 0
Oct 740 602 0 0 0 0
Nov 738 578 0 0 0 0
Dec 743 549 0 0 0 0
Source: MOT and MOF